The role of subnational governments in adult skills systems: Italy

This country note provides an overview of the governance of the adult skills system in Italy. It is part of an extensive review of all 38 OECD countries. The main findings across all countries are summarised in the OECD policy paper The Role of Subnational Governments in Adult Skills Systems. Representatives from the Italian Government reviewed the country note in February 2025 and it was published in June 2025.

Table 1. Overall governance and expenditure structure

Governance structure	Levels of governance	% of general government expenditure at the sub-national level
Unitary	National: State Regional: Regioni Local: Comuni	27.2%
How is the adult skills system governed?
Centralised	Combined system	Decentralised ✓

Note: For more information on the definitions of the governance models, please see (OECD, 2025[1]).

Source: (OECD/UCLG, 2022[2])

How is the adult skills system governed?

Italy has a decentralised adult skills system in which regional governments play a central role in designing and delivering adult skills policies.

• Strategic responsibilities for Vocational Education and Training (VET), Continued Education and Training (CET) and adult education (AE) policies are split at the national level between the Ministry of Education and Merits (Ministero dell'Istruzione e del Merito) and the Ministry of Labour and Social Policies (Ministero del Lavoro e delle Politiche Sociali). However, these policy areas are characterised by a multi-level governance set-up with broad involvement from national, regional, and local stakeholders. While the ministries set the overall framework, the regional government is responsible for designing and implementing VET, CET and AE policies, including funding and managing regional Vocational Training and Adult Education Centres. In addition, social partners contribute to defining and creating policies relevant to VET and lifelong learning.

• Higher VET (HVET) is overseen by the Ministry of Universities and Research (Ministero dell’Università e della Ricerca) and delivered at the regional level by Higher Technical Institutes (Istituti Tecnici Superiori), which are also funded and managed by the regional government.

• The Ministry of Labour and Social Policies sets the strategic and legislative framework for Active Labour Market Policies (ALMPs). The Ministry and the Public Employment Service (PES) and the National Agency for Active Labour Market Policies (Agenzia Nazionale Politiche Attive del Lavoro—ANPAL) recently underwent significant reform, abolishing ANPAL. The functions of ANPAL are attributed to the Ministry of Labour and Social Policies. The functions and personnel of the research sector are transferred to the National Institute for the Analysis of Public Policies (INAPP). Implementation, however, remains a regional responsibility.

Table 2. Allocation of responsibilities across policy areas and levels of government

		Strategy	Intelligence	Implementation	Funding	Delivery
Policy area	National level
	VET, HVET	✓	✓	✓	-	-
	CET	✓	✓	✓	-	-
	AE	✓	✓	✓	-	-
	ALMP	✓	✓	-	-	-
	Regional level
	VET, HVET	✓	✓	✓	✓	✓
	CET	✓	✓	✓	✓	-
	AE	✓	✓	✓	✓	✓
	ALMP	-	✓	✓	✓	✓
	Local level
	VET, HVET	-	-	-	-	-
	CET	-	-	-	-	✓
	AE	-	-	-		✓
	ALMP	-	-	-	-	-

Legend: ✓ = Yes; - = No

Note: Note: For more information on exact definitions of policy areas and responsibilities, please see (OECD, 2025[1]).

Infographic 1. Overview of the adult skills system

Note: Colour code: Dark blue → government/national/subnational agencies, Green → social partners, Lighter blue → private actors and education providers, Yellow → Expert councils/foundations/associations/research institutions. For more information, please see (OECD, 2025[1])

Source: OECD compilation based on available information.

Stakeholders and responsibilities at the national level

Responsibilities at the national level are split between multiple ministries and national agencies:

• The Ministry of Education and Merit is responsible for designing and overseeing national educational policies, particularly VET, CET and AE. It oversees two national agencies: the National Institute for the Evaluation of the Educational and Training System (Istituto Nazionale per la Valutazione del Sistema Educativo di Istruzione e Formazione) (which is responsible for the evaluation of VET and formal AE policies) and the National Agency for School Authomy (Agenzia Nazionale per lo Sviluppo dell’Autonomia Scolastica) (which promotes innovation in teaching methods in VET and AE programme).

• The Ministry of Labour and Social Policies (Ministero del Lavoro e delle Politiche Sociali) is responsible for developing ALMPs. The Ministry oversees the National Agency for Public Policy Analysis (Istituto Nazionale per l’Analisi delle Politiche Pubbliche), which supports the development of evidence-based public policies in employment, VET, lifelong learning, and social policies.

• Social partners (trade unions and employers’ organisations) are central to Italy’s adult skills system. They provide input to the design and reform of policies, deliver education and training programmes at the workplace, and organise training initiatives for their members.

Table 3. Stakeholders and responsibilities at the national level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Ministry of Education and Merit (Ministero dell'Istruzione e del Merito)	✓	-	-	✓	-	Ministry	VET AE	The Ministry is responsible for designing and overseeing national educational policies, including VET, CET, and AE. It establishes curricular standards for adult basic education and vocational training programmes. It allocates funding to and oversees the implementation of adult education programmes through adult education centres (CPIAs) and other institutions delivering adult education at the foundational level. It works closely with regions to harmonise national and regional VET systems and to integrate adult education into regional lifelong learning strategies.
Ministry of Labour and Social Policies (Ministero del Lavoro e delle Politiche Sociali)	✓	✓	-	✓	-	Ministry	CET ALMP	The Ministry is responsible for developing ALMPs, including training and re- and upskilling programmes for unemployed and underemployed adults. It sets national guidelines for operating employment services and vocational training initiatives and coordinates the work of the National Agency for Active Labour Market Policies (the Italian PES). It distributes funds for ALMPs through national and EU budgets and collects and analyses labour market data to identify skills gaps and inform training policies.
Ministry of Universities and Research (Ministero dell’Università e della Ricerca)	✓	-	-	✓	-	Ministry	HVET CET	The Ministry is responsible for designing HVET policies. It sets standards and guidelines for advanced vocational programmes and oversees and provides funding for Universities and higher technical institutes (the primary providers of HVET and CET for professionals).
National Institute for the Evaluation of the Education and Training System (Istituto Nazionale per la Valutazione del Sistema Educativo di Istruzione e Formazione)	-	✓	-	-	-	National agency	VET AE	The agency operates under the Ministry of Education and Merit and is responsible for evaluating the effectiveness and quality of Italy’s education and training system. It collects and analyses data on students’ educational outcomes, including adult learners in formal education systems.
National Agency for School Autonomy (Agenzia Nazionale per lo Sviluppo dell’Autonomia Scolastica)	-	✓	-	-	-	National agency	VET AE	The agency operates under the Ministry of Education and Merit and promotes innovation in teaching methods, particularly in AE and VET programmes.
National Institute for Public Policy Analysis (Istituto Nazionale per l’Analisi delle Politiche Pubbliche)	-	✓	-	-	-	National agency	VET HVET CET ALMP	The institute operates under the supervision of the Ministry of Labour and Social Policies. The institute deals with the study, research, monitoring and evaluation of public policies in the fields of labour, education and training, social protection, active and passive labour policies, the third sector, social inclusion, and policies with effects on the labour market. It supports the development of evidence-based public policies in employment, VET, lifelong learning, and social policies. It advises the Ministry and other national bodies on strategies to improve workforce skills, promote social inclusion, and strengthen labour market dynamics. It also offers national and regional governments technical expertise in designing and improving training and employment programmes.
National Council for Economics and Labour (Consiglio Nazionale dell'Economia e del Lavoro)	-	✓	-	-	-	Expert council	VET HVET CET AE ALMP	The council reports directly to the Italian Parliament and Government and is not formally attached to a specific ministry. It provides advisory opinions on economic, labour, and social policies, including adult education, skills development, and employment strategies. It facilitates dialogue between social partners and the government on key policy matters and conducts studies on labour market trends, economic conditions, and education systems. Council members include experts, employee and employer representatives and representatives from the third sector.
Social partners	-	✓	✓	✓	✓	Social Partners	VET HVET CET AE	Social partners are central to Italy’s adult skills system. They seek to influence national and regional policy frameworks for VET, CET, and labour market inclusion, collaborate with employers and training providers to design and deliver sector-specific training programmes and organise training initiatives for members. Some organisations administer training funds jointly with employers to support workers' professional development.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2019[3]), (OECD, 2017[4]), (OECD, 2023[5]), (Cedefop and INAPP, 2022[6]), (Cedefop, 2018[7]), (Eurocultura, 2024[8]), (OECD, 2023[9]), (Eurydice, 2024[10]), (Ministry of Education and Merti, 2024[11]), (Eurydice, 2024[12]), (OECD, 2024[13]), (SNGWOFI, 2024[14]), (Ministry of Labour and Social Policies, 2024[15]), (OECD, 2019[16]), (INVALSI, 2024[17]), (INAPP, n.d.[18]), (CNEL, 2024[19]), (Ministry of Labour and Social Policies, 2024[20])

Stakeholders and responsibilities at the regional level

Legislative Decree No. 122 of 1998 outlines the devolution of administrative functions to regions and local entities, emphasising the role of regional authorities in adult skills provision, particularly vocational education and training. In addition, Italy’s constitutional reform of 2011 gave the regional governments significant power over education and labour policies.

• The regional governments are the primary actors in designing and implementing VET, HVET, CET, AE and ALMP policies. The regions are responsible for designing regional plans for VET, HVET, CET and AE based on regional needs, and they fund and oversee delivery through multiple providers, including regional VET schools, adult education centres and Higher Technical Institutes.

• The regional governments, in cooperation with the national government, fund and manage the regional employment centres, which are the direct providers of ALMPs.

• The regional governments are supported by the Regional Observatories on Labour and Training (which provides intelligence and research to inform policies) and the Regional Councils for Vocational Education and Training (which facilitate coordination between regional governments, social partners and training providers).

Table 4. Stakeholders and responsibilities at the regional level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Regional Governments (Regioni)	✓	-	✓	✓	-	Subnational government	VET CET AE ALMP	Regional governments are the primary actors in designing and implementing VET, HVEt, CEt, AE and ALMP policies. Italy’s Constitutional reform of 2011 gave the regional governments significant powers over education and labour policies, particularly in VET and CET. The regions are responsible for designing regional plans for VET, HVET, and CET based on regional and local labour market needs and developing and implementing regional strategies for ALMPs. They also set priorities for adult education programmes in collaboration with national guidelines. The regions manage regional vocational training Centers and coordinate and co-finance provision with local education providers, including schools, Higher Technical Institutes and adult education centres.
Regional Employment Services (Centri per l’Impiego)	-	✓	-	-	✓	Subnational government	ALMP	Regional employment services are responsible for implementing ALMPs and connecting job seekers with relevant training and employment opportunities. They provide career guidance, job placement services, and CET and VET programme referrals. They also run re- and upskilling programmes for unemployed or underemployed individuals, gather data on local labour market trends and advise the regional government on policy adjustments.
Regional Observatories on Labour and Training (Osservatori Regionali)	-	✓	-	-	-	Subnational Government	VET CET ALMP	The regional observatories provide intelligence and research to inform VET, CET, and ALMP policies. The regional governments are the primary authority responsible for operating the observatories, which are an integral part of the regional administration’s labour and training departments.
Regional Councils for Vocational Education and Training (Consigli Regionali della Formazione Professionale)	-	✓	-	-	-	Expert council	VET CET	These councils facilitate coordination between regional governments, social partners, and training providers regarding VET and CET policies. They advise regional governments on VET and CET priorities and bring together employers, trade unions, and education providers to ensure training meets local economic needs. The council members typically include regional government, social partners, education institutions and local authorities. However, each region has the autonomy to tailor the council to local and regional needs.
Regional Vocational Training Centres (e.g. Centri di Formazione Professionale)	-	-	-	-	✓	Education provider	VET	These are vocational schools that deliver training for entry- to mid-level jobs. They provide courses in vocational skills for young people and adults, often tied to apprenticeships or sector-specific certifications. They partner with employers to deliver on-the-job training. They receive funding from regional governments and private sector partners. Most schools operate at the local level.
Higher Technological Institutes (Istituti Tecnici Superiori, ITS)	-	-	-	-	✓	Education provider	HVET	Higher technological institutes operate at the regional level to deliver HVET, focusing on advanced technical skills in key economic sectors. They are recognised as an integral part of the tertiary non-acedemic higher technological education sector. The regional government, the Ministry of Education, and private sector contributions fund them.
Adult education centres (Centri Provinciali per l'Istruzione degli Adulti, CPIA)	-	-	-	-	✓	Education provider	AE	The centres are public adult education centres offering a range of programmes, including basic education, language and literacy, preparatory courses and digital and basic skills. They target adults who have not completed compulsory education, immigrants requiring language and cultural integration, and individuals seeking to re- and upskill to enhance employability. The centres operate within the regional frameworks for adult education, and the regional governments provide strategic oversight and funding for the centres alongside the national government. Municipalities play a supportive and operational role in ensuring that the centres meet the needs of their local populations. They are often based on facilities provided by municipalities, such as public schools, community centres or municipal halls.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2019[3]), (OECD, 2017[4]), (OECD, 2023[5]), (Cedefop and INAPP, 2022[6]), (Cedefop, 2018[7]), (Eurocultura, 2024[8]), (OECD, 2023[9]), (Eurydice, 2024[10]), (Ministry of Education and Merti, 2024[11]), (Eurydice, 2024[12]), (OECD, 2024[13]), (SNGWOFI, 2024[14]), (Ministry of Labour and Social Policies, 2024[15]), (OECD, 2019[16]), (INVALSI, 2024[17]), (INAPP, n.d.[18]), (CNEL, 2024[19]), (Ministry of Labour and Social Policies, 2024[20])

Stakeholders and responsibilities at the local level

Although most of the education and training services are delivered locally, municipalities have a limited formal role in the adult skills system in Italy. However, they play a strong informal role in facilitating co-operation and alignment with local needs at the local level.

• While the role of municipalities is limited compared to regional governments, their local presence ensures that services are accessible and tailored to community needs. They facilitate cooperation between adult education centres, local employment services, local vocational training centres and other stakeholders such as NGOs and employers.

• NGOs and non-profit education and training providers operate at the local level, often with a focus on providing support for vulnerable groups further from the labour market.

Table 5. Stakeholders and responsibilities at the local level

Name of institution	Responsibilities					Organisation type	Areas	Description
	Strategy	Intelligence	Implementation	Funding	Delivery
Municipalities (Comuni)	-	-	-	✓	✓	Subnational government	CET AE	While the role of municipalities is limited compared to regional governments, their local presence ensures that services are accessible and tailored to community needs. They facilitate cooperation between adult education centres, local employment services, local vocational training centres and other stakeholders such as NGOs and employers. They may also directly manage or co-manage specific adult education or lifelong learning initiatives, particularly informal education and cultural integration programmes, and they often provide targeted programmes to help vulnerable populations, such as immigrants or low-income individuals. They contribute financial support to adult education and training programmes, including operational costs like facility maintenance and community outreach.
NGOs/community groups	-	-	-	-	✓	Education provider	AE	Local non-profit organisations and civil society organisations often support vulnerable groups, such as migrants, by providing supplementary training or integration services.

Legend: ✓ = Yes; - = No

Source: OECD compilation based on (OECD, 2019[3]), (OECD, 2017[4]), (OECD, 2023[5]), (Cedefop and INAPP, 2022[6]), (Cedefop, 2018[7]), (Eurocultura, 2024[8]), (OECD, 2023[9]), (Eurydice, 2024[10]), (Ministry of Education and Merti, 2024[11]), (Eurydice, 2024[12]), (OECD, 2024[13]), (SNGWOFI, 2024[14]), (Ministry of Labour and Social Policies, 2024[15]), (OECD, 2019[16]), (INVALSI, 2024[17]), (INAPP, n.d.[18]), (CNEL, 2024[19]), (Ministry of Labour and Social Policies, 2024[20])

References

[7] Cedefop (2018), Spotlight on VET - 2018 compilation, https://www.cedefop.europa.eu/en/publications/4168 (accessed on 5 December 2024).

[6] Cedefop and INAPP (2022), Vocational education and training in Europe - Italy; system description, https://www.cedefop.europa.eu/en/tools/vet-in-europe/systems/italy-u2 (accessed on 5 December 2024).

[19] CNEL (2024), The national council of economy and labour, https://www.cnel.it/Chi-Siamo/Il-CNEL (accessed on 5 December 2024).

[8] Eurocultura (2024), Vocational Training System, https://studyvisit.eurocultura.it/italian-vocational-training-system/ (accessed on 5 December 2024).

[21] European Commission, Eurydice (2023), 8. Adult education and training, https://eurydice.eacea.ec.europa.eu/national-education-systems/netherlands/adult-education-and-training.

[10] Eurydice (2024), Italy - Adult education and training, https://eurydice.eacea.ec.europa.eu/national-education-systems/italy/adult-education-and-training (accessed on 5 December 2024).

[12] Eurydice (2024), Italy - Adult education and training funding, https://eurydice.eacea.ec.europa.eu/national-education-systems/italy/adult-education-and-training-funding (accessed on 5 December 2024).

[18] INAPP (n.d.), Institute, https://www.inapp.gov.it/istituto (accessed on 5 December 2024).

[17] INVALSI (2024), Presentation, https://www.invalsi.it/invalsi/istituto.php?page=chisiamo (accessed on 5 December 2024).

[11] Ministry of Education and Merti (2024), Adult education: offering, admission, orientation, https://unica.istruzione.gov.it/portale/en/orientamento/guida-alla-scelta/dal-sistema-integrato-0-6-anni-al-secondo-ciclo-di-istruzione/istruzione-degli-adulti/offerta-accoglienza-orientamento (accessed on 5 December 2024).

[20] Ministry of Labour and Social Policies (2024), Formation, https://www.lavoro.gov.it/temi-e-priorita/orientamento-e-formazione/focus-on/formazione/pagine/default (accessed on 5 December 2024).

[15] Ministry of Labour and Social Policies (2024), The Ministry, https://www.lavoro.gov.it/g7-labour/ministro-e-ministero/Il-ministero (accessed on 5 December 2024).

[1] OECD (2025), “From national to local: Exploring the role of subnational governments in adult skills systems across OECD countries”, OECD Local Economic and Employment Development (LEED) Papers, No. 2025/XX, OECD Publishing, Paris.

[13] OECD (2024), OECD Economic Surveys: Italy 2024, OECD Publishing, Paris, https://doi.org/10.1787/78add673-en.

[5] OECD (2023), ““Who does what” for active labour market policies: A zoom on the role of subnational governments”, OECD Local Economic and Employment Development (LEED) Papers, No. 2023/09, OECD Publishing, Paris, https://doi.org/10.1787/d8d6868d-en.

[9] OECD (2023), Spotlight on Vocational Education and Training: Findings from Education at a Glance 2023, OECD Publishing, Paris, https://doi.org/10.1787/acff263d-en.

[3] OECD (2019), Adult Learning in Italy: What Role for Training Funds ?, Getting Skills Right, OECD Publishing, Paris, https://doi.org/10.1787/9789264311978-en.

[16] OECD (2019), Strengthening Active Labour Market Policies in Italy, Connecting People with Jobs, OECD Publishing, Paris, https://doi.org/10.1787/160a3c28-en.

[4] OECD (2017), Getting Skills Right: Italy, Getting Skills Right, OECD Publishing, Paris, https://doi.org/10.1787/9789264278639-en.

[2] OECD/UCLG (2022), 2022 Country Profiles of the World Observatory on Subnational Government Finance and Investment, https://www.sng-wofi.org/country-profiles/italy.html.

[14] SNGWOFI (2024), “Italy”, https://www.sng-wofi.org/country-profiles/italy.html (accessed on 5 December 2024).

About the Local Employment and Economic Development Programme (LEED)

The OECD Local Economic and Employment Development (LEED) Programme Papers present innovative ideas and practical examples on how to boost local development and job creation. A wide range of topics are addressed, such as employment and skills; entrepreneurship; the social economy and social innovation; culture; and local capacity building, among others. The series highlights in particular policies to support disadvantaged places and people, such as the low skilled, the unemployed, migrants, youth and seniors.

About the Centre for Entrepreneurship, SMEs, Regions and Cities

The Centre helps local, regional and national governments unleash the potential of entrepreneurs and small and medium-sized enterprises, promote inclusive and sustainable regions and cities, boost local job creation and implement sound tourism policies. Find out more: www.oecd.org/cfe

This project was made possible by generous support from the JPMorganChase Foundation.

This work is published under the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of the Member countries of the OECD.

This document, as well as any data and map included herein, are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area.

The statistical data for Israel are supplied by and under the responsibility of the relevant Israeli authorities. The use of such data by the OECD is without prejudice to the status of the Golan Heights, East Jerusalem and Israeli settlements in the West Bank under the terms of international law.

The views expressed in this report should not be taken to reflect the official position of the JPMorgan Chase Foundation, JPMorganChase or any of its affiliates.

The full paper is available in English: OECD (2025), The role of subnational governments in adult skills systems, OECD Local Economic and Employment Development (LEED) Papers, OECD Publishing, Paris, https://doi.org/10.1787/d452e8b7-en

© OECD 2025

Attribution 4.0 International (CC BY 4.0)

This work is made available under the Creative Commons Attribution 4.0 International licence. By using this work, you accept to be bound by the terms of this licence (https://creativecommons.org/licenses/by/4.0/).

Attribution – you must cite the work.

Translations – you must cite the original work, identify changes to the original and add the following text: In the event of any discrepancy between the original work and the translation, only the text of original work should be considered valid.

Adaptations – you must cite the original work and add the following text: This is an adaptation of an original work by the OECD. The opinions expressed and arguments employed in this adaptation should not be reported as representing the official views of the OECD or of its Member countries.

Third-party material – the licence does not apply to third-party material in the work. If using such material, you are responsible for obtaining permission from the third party and for any claims of infringement.

You must not use the OECD logo, visual identity or cover image without express permission or suggest the OECD endorses your use of the work.

Any dispute arising under this licence shall be settled by arbitration in accordance with the Permanent Court of Arbitration (PCA) Arbitration Rules 2012. The seat of arbitration shall be Paris (France). The number of arbitrators shall be one.